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CONTRACTING SUPPORT
ON THE BATTLEFIELD
CONTRACTING SUPPORT
ON THE BATTLEFIELD
Table of Contents
PAGE
PREFACE ..............................................................................................................iv
Chapter 1 CONTRACTING SUPPORT TO THE FORCE..............................................1-1
Section I - Overview .........................................................................................................1-1
Definitions............................................................................................................1-2
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FM 100-10-2
Overview ..............................................................................................................2-1
Corps ....................................................................................................................2-8
Division ................................................................................................................2-9
Deployment........................................................................................................ 3-20
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FM 100-10-2
PROGRAM..................................................................................................................... B-1
CONTRACTING............................................................................................................ E-1
Glossary ............................................................................................................................Glossary-1
Bibliography...............................................................................................................Bibliography-1
Index ......................................................................................................................................Index-1
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FM 100-10-2
Preface
Today’s Army has transitioned from a force that was forward deployed to one that is primarily
CONUS-based. This transition, however, has not changed the Army’s national defense strategy
role of providing land-based forces capable of operating across the entire military spectrum of
operations. What has changed is the need to more rapidly generate and deploy forces to an
operational area. As a consequence, some support forces will lag behind other, higher priority
forces, resulting in a logistical shortfall. To bridge the gap before scheduled resources and CSS
units arrive, or when other logistical support options do not provide the supplies and service
needed, the Army is turning more frequently to contracting support to provide goods and
services required. Contracting support is an integral part of the overall process of obtaining
support across the entire spectrum. Contingency contracting provides the commander a flexible
and responsive means to support deployed forces and their mission.
FM 100-10-2 addresses the contracting on the battlefield dimension of logistics, and is intended
for the non-contracting reader responsible for, or involved with, the planning and obtaining of
supplies or services through contracting support. Its purpose is to define battlefield contracting,
also referred to as contingency contracting, in terms of its structure, organization, and process
at the operational and tactical levels. References to the battlefield in the context of this manual
include the theater or area of operations of any operationally-deployed Army force, anywhere in
the world. The text recognizes that military operations include stability actions and/or support
actions such as nation building and disaster relief, which defy traditional definitions of a
battlefield. Principles discussed herein apply to Army missions spanning the operational
spectrum. This manual addresses the role of contracting in force projection, and where it fits
within the logistical support structure. It describes the operational concept of contracting
support on the battlefield, the legal and regulatory parameters that govern its conduct, and the
principles that guide its activities. This manual discusses the management of civilian
contractor personnel in general terms; FM 100-XX, Contractors on the Battlefield, prescribes
Army doctrine for this topic and discusses it in detail.
FM 100-10-2 describes the mission, organization, functions, and location of contracting elements
in a theater of operations down to division-level. It discusses how they and the contractors they
deal with are controlled and managed, who the main participants are in the planning,
managing, and providing of contracting support on the battlefield, and briefly describes the
relationship which influence contracting in a joint and multinational environment. This
manual concentrates on planning for contracting support, to include requirements
determination and funding, support to contractors, and the deployment of contracting
organizations and contractors. It describes how contracting support is obtained, with emphasis
on unit or requesting activity responsibilities, and the processing of contracting support
requests. This manual recognizes the vital importance of the relatively small numbers of
deployable contracting personnel found in our Active and Reserve Component military forces as
well as Department of the Army civilian personnel. It informs commanders and their staffs
throughout the Total Army how to use these scarce resources as force multipliers, and covers
management of support contractor personnel in generic terms. FM 100-XX, Contractors on the
Battlefield, addresses this topic in detail.
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FM 100-10-2
The proponent for FM 100-10-2 is the Commander, US Army Combined Arms Support Center
(CASCOM). Send comments and recommendations on DA Form 2028 directly to Commander,
USA CASCOM, CAPSTONE Doctrine Branch, 3901 A Avenue, Suite 220, Fort Lee, VA, 23801-
1809.
Unless this publication states otherwise, masculine nouns or pronouns do not refer exclusively
to men.
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FM 100-10-2
Chapter 1
"The DOD components shall rely on the most effective mix of the total
force, cost and other factors considered, including active, reserve,
civilian, host nation, and contract resources necessary to fulfill
assigned peacetime and wartime missions."
DODI 3020.37
SECTION I
OVERVIEW
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FM 100-10-2
DEFINITIONS
ACQUISITION
Acquisition is the process by which the Army obtains the materiel and services
required to accomplish its mission. It is an integral part of the overall theater
logistics plan, and includes requirements generation flow, contract/purchase,
inspection, acceptance and user receipt of delivery.
CONTINGENCY
CONTINGENCY CONTRACTING
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CONTRACTING
CONTRACTING OFFICER
The contracting officer is an official with the legal authority to enter into,
administer and/or terminate contracts. A contracting officer is appointed in
writing through a warrant (SF 1402) by a Head of Contracting Activity (HCA) or
a Principal Assistant Responsible for Contracting (PARC). Only duly warranted
contracting officers, appointed in writing, or their designated representatives
are authorized to obligate the US Government. Active and Reserve Component
military personnel, as well as Department of the Army (DA) civilian personnel,
serve as contracting officers supporting deployed Army forces.
The HCA is a general officer, usually the senior commander in the theater, or a
deputy designated by that commander, who provides overall guidance
throughout the contingency. The HCA serves as the approving authority for
contracting as stipulated in regulatory contracting guidance. The HCA appoints
the PARC. All Army contracting authority in a theater flows from the HCA to
the PARC.
Host nation support (HNS) results from agreements which are normally
negotiated by US Government agencies such as the Departments of Defense
(DOD), Transportation or Commerce to provide support to deployed forces from
host nation resources. Support under these agreements may include billeting,
food, water, fuel, transportation, and utilities. HNS encompasses pre-planned
agreements, with support provided by the host nation available at the request of
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the ground force commander. Planners must consider, when opting to use HNS,
that support provided by this means meets local, not necessarily US, standards.
Utilization of HNS might increase requirements in one area while alleviating
them in another. For example, HNS provision of potable water often means bulk
water from a desalinization or purification facility, increasing the need for bulk
water storage, transport and distribution capabilities.
MICROPURCHASES
ORDERING OFFICER
The PARC, a special staff officer, is the Army Service Component Commander's
(ASCC) or mission commander's senior Army acquisition advisor responsible for
planning and managing all Army contracting functions within the theater. All
Army contracting authority in a theater flows from the HCA to the Army's
PARC. All Army contracting personnel within the theater, except those
assigned to the US Army Corps of Engineers (USACE) and the USAMC, operate
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under the procurement authority of the PARC. USACE and USAMC contracting
personnel retain procurement authority from those commands, but operate
under the functional control of the theater PARC while in theater, subject to
that officer's contracting support plan. The PARC's functional control of
contracting requires all contracting personnel from any Army agency or
supporting command to coordinate their activities with the PARC, usually
through the acquisition review board (ARB), and to follow the PARC's
contracting support plan when procuring any goods or services within the
theater. In a joint environment, the PARC may be the designated executive
agency for theater contracting, with responsibility to coordinate all DOD
contracting activities.
SECTION II
THEATER STRUCTURES
The National Military Strategy provides advice from the Chairman of the Joint
Chiefs of Staff (CJCS) to the National Command Authorities (NCA) on the
strategic direction of the Armed Forces. Currently, it endorses the fundamental
objectives of promoting stability through regional cooperation and constructive
interaction, and thwarting aggression through credible deterrence and robust
warfighting capabilities. The overlapping and interrelated strategic concepts
that allow the military to execute national military strategy are strategic agility,
decisive force, overseas presence and force projection. Force projection has
become the primary concept for employing military forces.
Force projection is the ability to rapidly alert, mobilize and deploy forces and to
conduct joint, multinational and interagency operations worldwide from CONUS
or forward-deployed locations. If necessary it means forced entry into a denied
theater or creating and protecting forward operating bases. The ability to
assemble and move to, through, and between a variety of environments, often
while reconfiguring to meet specific mission requirements, is essential to
offsetting an adversary’s advantage in mass or geographical proximity. Global
force projection provides our national leaders with the options they need to
respond to potential crises.
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CHAIN OF COMMAND
The CJCS communicates the directions of the NCA within the chain of
command. Though he does not exercise military command over any combatant
force, all communications between the NCA and the combatant commanders
pass through the CJCS. Figure 1-1 displays the chain of command.
The President and SECDEF comprise the NCA. They alone have the
constitutional authority to direct US armed forces into military action.
MILITARY DEPARTMENTS
The military departments operate under the authority, direction, and control of
the SECDEF. Through the Service chiefs, the secretaries of the military
departments direct and control their forces that are not assigned to combatant
commanders, and provide administrative (personnel and finance), legal, and
logistical support to their own Service forces. Contracting authority originates
at the military department level. In the Army, this authority resides in the
Assistant Secretary of the Army for Acquisition, Logistics and Technology
(ASA[ALT]), who has authority to appoint a command or theater contracting
executive or HCA.
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JOINT STRUCTURE
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THEATER STRUCTURE
THEATER OF WAR
When the NCA authorizes combat operations, the CINC, with NCA and Joint
Chiefs of Staff (JCS) approval, delineates a strategic theater of war that may
encompass part or all of the original theater (Figure 1-2).
THEATER OF OPERATIONS
If the CINC determines that he should sub-divide his theater of war to contend
with more than one major threat, he may designate subordinate theaters or
areas of operations (AOs) for each major threat. The theaters of operation refer
to those portions of an area of war necessary for military operations and for the
administration of such operations for extended periods. An AO is that
geographical area for which a specific unit commander is responsible.
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COMMUNICATIONS ZONE
The communications zone (COMMZ) extends from the rear of the combat zone
(CZ) in the theater of operations to the CONUS base. Its size may vary
depending on the size of the theater of operations, size of forces required for
operations and sustainment, depth required, lines of communication (LOCs),
enemy capability to interdict and disrupt sustainment operations, geography,
and political boundaries. The COMMZ contains the LOCs. Within the theater
logistics base, in the COMMZ, LOCs provide supply, maintenance, field services,
transportation, combat health support (CHS), personnel support and evacuation
and other services required for immediate support and sustainment of the field
force. It will typically contain logistics facilities required to support the theater
such as aerial ports and sea ports of debarkation (APODs/SPODs), marshaling
areas, storage areas, movement control points, and logistics headquarters and
units. Airfields and air bases, transitioning land forces, theater missile defense
forces, the theater rear headquarters, and strategic reserves are present in the
COMMZ. It is in the COMMZ that the majority of contracting support elements
will be found.
COMBAT ZONE
The ASCC prepares, trains, equips, administers, and provides CSS to Army
forces assigned to unified and specified commands, and supports the theater
CINC by conducting Army operations to support his objectives. The ASCC
commands and controls US Army forces in the theater, and is responsible to the
unified commander for accomplishing peacetime missions and functions and for
planning and preparing for war. When designated, the ASCC serves as the
theater contracting executive or HCA and provides contracting support within
the theater. PARCs and PARC staffs are part of the ASCC structure. The PARC
plans Army contracting operations in-theater, including it as a contracting
appendix to the logistics annex within the operations plan (OPLAN) or
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The ASCC assembles and tailors force modules to support a force performing its
operational mission. The initial support structure can provide only minimum
essential support functions and capabilities. To do this, contracting force
structures at theater and operational levels include an early entry module
(EEM) to establish contracting operations with or before the insertion of ground
forces. As the deployed force grows, the support structure expands to add
necessary capabilities. Contingency contracting, HNS, and LOGCAP often
provide needed support to deployed commanders as their logistics infrastructure
deploys and establishes operations.
For limited operations, echelons above corps (EAC) support organizations are
commanded either directly by the ASCC through the deputy commanding
general for support, or through the EEM of the Theater Support Command
(TSC). In larger, more mature operations, the complete TSC headquarters may
deploy. The TSC is the senior Army logistics headquarters in-theater, and
becomes the single point of contact (POC) for most CSS, including contracting
support.
Theater contracting hierarchies mirror those for logistics command and control.
For limited operations, the ASCC controls contracting operations through the
PARC, located on the Army Service Component Command staff, or through the
EEM of the TSC, which includes the Chief of the TSC's Contracting Directorate,
who serves as the Theater Contracting Officer. For larger, more mature
operations, the complete PARC section from the Army Service Component
Command and the entire Theater Contracting Section from the TSC may deploy.
The ASCC provides Army contracting planning, policy, oversight and
management throughout the theater, while the TSC establishes the theater
contracting office. The ASCC may establish initial theater contracting
operations using the EEM from either the Army Service Component Command
or the TSC, or both, as specified in the Army's theater contracting support plan
drafted by the PARC.
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The corps and echelons below corps are normally fully engaged with their
tactical missions. If they are given operational-level support requirements, they
must be augmented by operational-level CSS organizations to provide logistical
capability to the force. The use of contracting support to provide the supplies
and services needed is one method of augmentation. Contracting at corps and
below parallels that at theater. Implementing the Army's theater contracting
plan, the chief of the corps contracting center, located in the Corps Support
Command (COSCOM), plans and manages all contingency contracting
operations throughout the Corps area of responsibility in accordance with
METT-TC. That officer publishes the corps contracting support plan,
orchestrating the locations and functions of military contracting personnel
located within the COSCOM and its subordinate units, and within divisions
operating under corps control.
When designated Executive Agent for joint contracting, the ASCC and PARC
expand planning and execution to integrate contracting personnel from other
Services to support all US forces in theater, regardless of their Service
component. This manual interprets executive agency as the authority of the
Joint Force Commander (JFC), delegated to a lead Service, to plan and direct the
efforts of all DOD contingency contracting within the mission area controlled by
that JFC.
SECTION III
LOGISTICAL SUPPORT
STRATEGIC LOGISTICS
Strategic logistics provides the linkage between the nation’s economic base and
its military forces. The strategic level is primarily the purview of the DOD, the
Services, and non-DOD government agencies with the support of the private
sector in our economy. The strategic logistician's focus is on requirements
determination, personnel and materiel acquisition, supply support and
maintenance, stockpiling, and strategic mobility to support the Army’s objectives
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OPERATIONAL LOGISTICS
Operational logistics is the linkage between the strategic and the tactical level.
It encompasses support required to sustain joint/multinational campaigns and
other military activities within an area of operations. DOD civilians, contractor
personnel and equipment, and available host nation resources augment military
units making up the organizational structure at this level. The primary focus of
the operational logistician is on reception, positioning of facilities, materiel
management, supply support and maintenance, movements management, and
distribution. Contracting personnel might procure commercial support for
APOD/SPOD operations, as an example of operational logistics support.
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TACTICAL LOGISTICS
The Army’s primary mission is to deter war and, if deterrence fails, to fight and
win. Contracting plays a key role in the Army's ability to support this mission,
and provides a responsive alternative to increasing the number of support forces
necessary to perform the mission. During every phase of an operation,
contracting support can be used to augment the support structure. Contracting
personnel should arrive with or before the lead ground elements to establish
contracting operations, and depart with or after the last ground elements to
close out those operations. Contracting personnel establish their operations with
or near the local vendor base to support deployed forces.
MOBILIZATION
PRE-DEPLOYMENT ACTIVITIES
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DEPLOYMENT
ENTRY OPERATIONS
DECISIVE OPERATIONS
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REDEPLOYMENT
Contingency contracting personnel deploy with the first personnel, and redeploy
as some of the last. When Army forces deploy, they require support immediately
upon arrival in their area of operations, often while their organic CSS support is
still enroute. While ground force units depart, contracting personnel provide
goods and services to sustain and assist them. This support encompasses
housing, feeding, stevedoring at the ports, washracks and steam cleaners to
prepare vehicles for redeployment, and transportation of personnel and
equipment. Contracting personnel remain in the mission area until they close
out all contracts and all vendors receive final payment.
DEMOBILIZATION
Contracting personnel submit required contracting reports, close and store all
contract files, and prepare equipment and deployment kits for their next
mission.
CONTINGENCY CONTRACTING
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OPERATIONAL PRINCIPLES
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There are organizations across the military spectrum that exist to satisfy the
contracting needs of military forces. They range from those which provide policy
and program guidance and management at the highest level, to operational
elements that work to obtain the supplies and services needed to support specific
contingency situations. Figure 1-4 displays these echelons of contracting
support, and identifies the organizations that exist at the various levels.
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ACQUISITION PROCESS
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While the acquisition process includes all of the actions that must be taken to
obtain required goods or services, there is no single set of actions for each step in
the process. Variables such as type of goods and services required; the size,
type, complexity, and urgency of the requirement; and the applicable laws and
regulations all influence the actions taken.
The term acquisition covers the entire cycle from need identification and funding
through contract administration. The term contracting covers the portion of the
acquisition cycle starting with a purchase request (as a culmination of the
planning step) through contract close out.
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The authority to contract for supplies and services originates with the Secretary
of the Army, as illustrated in Figure 1-6, and is different from the authority to
command. Contracting authority, while separate and distinct from command
authority, supports the goals and objectives of the chain of command while
avoiding conflicts of interest.
ASSUMPTIONS
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• The senior contracting officer at each level of command will plan and
manage contracting functions within that unit's area of operations.
• Commanders will make provision for contract law advice for their
contracting personnel. Most PARCs require legal review of all
acquisitions valued over the simplified acquisition threshold (SAT).
Legal review of procurements under the SAT should be conducted to the
maximum extent possible in coordination with the supporting Staff
Judge Advocate's office.
Limitations
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Chapter 2
Ralph J. Cordiner
SECTION I
OVERVIEW
The ASCC commands and controls all Army forces in the assigned geographic
area. The CINC may direct the ASCC to provide common items to other
Services within the AO. In addition to meeting its own requirements, the Army
is usually designated as executive agent for supporting other Services with
inland surface transportation, construction support, rations, fuel distribution,
medical supplies, veterinary services, water, barrier materiel, mortuary affairs,
and common munitions.
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ROLE IN CONTRACTING
The theater support base is located at EAC/COMMZ (see Figure 2-2). This is the
level where operational logistics take place and where interfaces with the
strategic and tactical levels are made. Logistical support at the operational level
is managed and coordinated through the senior logistics element, normally the
TSC. The TSC contains a contracting directorate in its table of organization and
equipment (TOE), which performs the functions of the theater contracting
section when required by the PARC's contracting support plan. The chief of this
directorate, normally the senior Army contracting officer in the theater, serves
as theater contracting chief under the procurement authority of the PARC.
Using the contracting support plan, the PARC organizes available Army
contracting personnel operating within theater in accordance with METT-TC to
support the ASCC's concept of operations and concept of support.
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Theater
Theater of war
Theater of operations
CONUS
base Theater
Intertheater LOC support Intratheater LOC
base
Strategic logistics
Operational CSS
Tactical CSS
Mission
Composition
The size of the module depends on the extent of the operation and the size of the
deploying force. Normally, module personnel are drawn from the contracting
elements assigned to the forces involved, and fall under the operational control
of the senior contracting organization in the theater.
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The ASCC prepares, trains, equips, and provides CSS to Army forces assigned to
unified or specified commands. He conducts Army operations to support the
CINC's objectives. When designated as the HCA, the ASCC is responsible for
the theater contracting management functions.
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Mission
Contracting Structure
The PARC within the Army Service Component Command plans and manages
all Army contracting originating in the theater. The TSC Contracting
Directorate forms the Army's theater contracting office. The chief of the TSC
contracting directorate, the Army's senior contracting officer in the theater,
heads the Army's theater contingency contracting operations. The PARC
structures contracting operations within theater, consolidating contracting
functions while exercising functional control of contracting personnel from other
organizations, such as the USACE, with separate and distinct contracting
authority. The PARC may consolidate contingency contracting personnel, or
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distribute them with their parent units as area procurement offices subordinate
to him, based on METT-TC. Specialized contracting personnel, such as those
from the USACE, USAMC or Defense Contract Management Command
(DCMC), operate with procurement authority from their commands. These
personnel support ASCC staff sections, such as the USACE Contingency Real
Estate Support Team (CREST) which provides real estate and real property
acquisition support to the ASCC Engineer, or LOGCAP supporting the G4.
These ASCC staff agencies coordinate the contracting actions of their commands
in-theater with the PARC through the ARB to avoid competing with other US
units for the same goods or services. Contracting support provided by the TSC is
accomplished through either the contracting directorate in the TSC
headquarters, under the Deputy Commander for Support Operations, or a
contracting element in a subordinate ASG. The TSC headquarters contracting
directorate performs its mission through a staff of contracting officers, and
procurement, legal, and administrative specialists. The head of the TSC
contracting directorate may also be delegated chief of contracting authorities by
the PARC when the ASCC doesn't deploy to support a limited mission. The ASG
provides its contracting support through an element located within the
headquarters support operations directorate.
The TSC contracting directorate locates with the vendor base and in proximity
to the other TSC headquarters elements, in the theater base in the COMMZ in
accordance with the contracting support plan. Contracting officers and other
support personnel of the TSC, corps, divisions and the ASG locate where the
PARC and subordinate level contracting chiefs direct in their respective
contracting support plans.
The LSE, a subordinate element of the USAMC, serves within the TSC, either
assigned or attached, as the focal point for all USAMC activities in a theater.
USAMC fields three theater oriented LSEs: LSE-Europe, LSE-Far East and
LSE-CONUS, with responsibility to support the Central Command (CENTCOM)
and Southern Command (SOUTHCOM). USAMC augments LSE as required
with organic military personnel, DA civilians and contractor personnel. The
LSE retains administrative control of these attached contractors, coordinating
their life support, transportation and force protection with the TSC. The LSE
maintains direct lines of communication to contracting officers assigned to
USAMC's major subordinate commands (MSCs) to modify their contracts as
required. The LSE fully integrates contractors into their structure. The LSE
does not directly manage the LOGCAP contract or contractors in the area of
operations. USAMC LOGCAP PM deploys a Team LOGCAP Forward, which
falls under the LSE to manage the use of LOGCAP contractor efforts in support
of the deployed force. The LOGCAP Procuring Contracting Officer (PCO) or
designated representative deploys as a member of this team. FM 63-11,
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Mission
Contracting Structure
USAMC's LSEs rely on the PARC's contracting personnel for local procurement
of supplies and services. Each USAMC MSC deploys a team headed by a senior
command representative, which may include CORs for that command's weapon
systems contracts. The LSE staff may include legal and contracting advisors.
The theater PARC's contracting support plan governs contracting personnel
deploying with the LSE, just as it does all other Army contracting personnel
operating within the theater.
The LSE normally locates near the TSC in the COMMZ, and may disperse teams
throughout the theater to support systems and LOGCAP contractors.
CORPS
The COSCOM provides support, including contracting support, to the corps force
and to other units, Services, or allies as directed. The COSCOM provides
contracting support through the corps contracting section or center in its
headquarters, and through its various subordinate units.
MISSION
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DIVISION
The DISCOM provides CSS to all organic units and elements attached to the
division. Contracting support for a division resides in a small contracting
support element in DISCOM headquarters.
MISSION
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CONTRACTING STRUCTURE
The division's contracting section, organic to the DISCOM, operates under the
theater and Corps contracting support plans. Based on METT-TC, this section
may be attached to the senior mission contracting organization and consolidated
with other contracting assets, or may provide direct support for the division as
an area procurement office within the division area.
SECTION II
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Senior commanders always want their direct support (DS) under their
command. Each echelon from division to EAC has some type of organic
contracting element in its organizational structure. The principle of centralized
control and management of contracting elements seems to contradict this desire.
However, centralization better serves the interests of the force as a whole.
While management and control of contracting functions and authority is
centralized, execution of the mission is decentralized as much as possible so that
the approved contracting requirements at all levels can be promptly satisfied.
The PARC determines, based on METT-TC, where the mission commander
needs contracting personnel to best support the mission. Local vendor base
considerations often drive this decision. The PARC often determines to leave
contingency contracting personnel within their parent corps areas as area
procurement offices to build on their habitual working relationships with the
chain of command. A limited vendor base, or other considerations, may require
partial or total consolidation of contingency contracting personnel to support the
force. The PARC also displaces or redistributes contracting personnel and
sections to support the ASCC's scheme of maneuver.
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The HCA, appointed by the ASA(ALT), is the senior Army contracting authority
in-theater, and is the authority for the approval of contracting actions as
stipulated by the various acquisition regulations. The HCA implements
operational plans based on Army secretariat instructions, and is the appointing
authority for the PARC, a contracting professional and his principal contracting
assistant. The HCA is a general officer, normally the senior commander or his
deputy, in the theater. In a joint environment, the CINC designates a lead
Service for contracting, whose HCA oversees contracting functions for the Joint
force per their Service doctrine; for the Army, the ASCC or the deputy would
likely be that HCA. All Army contingency contracting authority in a theater
flows from that HCA.
The PARC is a key individual in a theater for controlling and managing Army
contracting organizations and personnel. The PARC—
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• Assign and control purchase order and contract numbers, and assists in
reconciling records with finance and the comptroller.
Until SPS is fully fielded, contracting elements use other automated information
management capabilities. A wide variety of software is required to accomplish
the many facets of contracting. There is currently no DOD-standard integrated
software system to support contingency contracting officer functions.
Experience from past operations has taught that at a minimum, contingency
contracting elements must have word processor, spreadsheet, database, form
generation, presentation graphics, and communication capability. There are
several commercial off-the-shelf packages that provide most of these under a
single umbrella-type program.
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SYSTEMS CONTRACTORS
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SECTION III
Contracting support for any operation is not the sole responsibility of the
contracting organizations in the theater. The responsibility for successful
contracting support is shared by a number of participants, each of whom plays
an important role in the process. All must work together to make contingency
contracting a responsive force multiplier.
COMMANDER
COMPTROLLER/RESOURCE MANAGER
The comptroller/RMO prepares and maintains the budget for the command. He
certifies funds on purchase requests prior to submission to the contracting
element, and approves and provides written certification of funds availability for
all purchase requests for locally purchased goods and services. Contracting and
RMO often locate in close mutual proximity to expedite purchase request
processing.
STAFF PROPONENT
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REQUIRING ACTIVITY
The requiring activity is the unit, activity, or organization that identifies what is
needed and when it is needed. In support of this identified need, it prepares the
purchase request and the associated statement of work (a detailed description of
what is needed), estimates the cost, and obtains the certification of funds from
the comptroller/resource manager. Once the requirement has been contracted
for, the requiring activity receives the supplies and services, and ensures that
what was provided is what was requested. The requiring unit provides
personnel as required by the contracting officer to serve as the COR.
CONTRACTING OFFICER
LEGAL ADVISOR
Legal support for the contracting process is critical for ensuring that contract
actions are performed within legal limits. The Staff Judge Advocate provides
contract law advice throughout the entire contracting process.
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ORDERING OFFICER
RECEIVING OFFICIAL
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appointment orders. The COR has no authority to direct changes that affect
price, quantity, quality, delivery or other terms or conditions of the contract.
His responsibility is to monitor and enforce the contract as written, and to
document receipt of goods and services so the contractor can receive payment.
Contingency operations almost always involve not only Army forces, but also
those of the other Services, and our allies. Because of the variety of forces
involved, contracting support assumes an entirely different complexion than it
has when only Army forces are involved. Contracting elements become more
diverse and multidimensional when operating in a joint or multinational
environment. The overriding principle that governs contracting support in such
an environment is consolidation of contracting assets to achieve maximum
operational efficiency and economy.
JOINT COMMANDER
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The senior contracting official from the designated lead Service for theater
contracting publishes the theater/joint force contracting support plan as an
appendix to the logistics annex to the OPORD and OPLAN. This plan governs
theater contracting structure, locations, command relationships, responsibilities,
and any restrictions such as commodities reserved for procurement by theater
contracting.
INTER/INTRASERVICE RELATIONSHIPS
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MULTINATIONAL FORCES
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Chapter 3
Planning for contracting support is part of the overall support plan for any
operation. Although support factors constrain combat operations, the supported
commander’s concept of operations, priorities, and allocations dictate the actions
of the supporting logistician in determining which support options, including
contracting, will best satisfy an operation's logistical needs.
Planning permits rapid, coordinated action by staffs and other elements of the
command. It also permits the command to respond to rapidly changing
situations. Adequate, practical planning is essential to the success of contracting
support and is an essential part of the environment of both the operational
planner and the contracting manager. Operational planners at all levels must
actively involve contracting managers in the planning process to ensure that
contracting support is a considered support option, and when used, it will be
responsive to the needs of the command. Success requires advance knowledge of
expected support requirements so that a responsive approach can be developed
and potential sources identified. Planning for contracting support follows the
same process as other planning, and is part of both the deliberate and crisis
action planning (CAP) processes. Properly included in the planning process,
contingency contracting personnel locate vendor bases within and near the
mission area, identify supplies, services and equipment available from the local
economy, and advise the commander how to leverage this commercially available
support. This allows planners to maximize available airlift and sealift assets.
CCOs also help commanders avoid basing their plans on false assumptions about
the availability or suitability of commercial support.
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DELIBERATE PLANNING
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SOURCES OF SUPPORT
ORGANIC SUPPORT
The Army’s force structure contains organizations that provide CSS for military
operations. Initial consideration as a source of support is given to these units
which are organic to the Army force structure. These include military units and
civilian organizations staffed and equipped to perform a variety of support
missions. Army organizations like the Army Service Component Command, TSC,
COSCOM, DISCOM, the USACE or the USAMC, as well as DOD organizations
such as USTRANSCOM, DLA, and AAFES are organic to the force structure
found in a theater of operations.
MULTINATIONAL FORCES
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ACSA may provide either of two separate authorities, acquisition only authority
and cross-servicing authority, which together form a bilateral support program.
Acquisition only authority, allows the US to acquire goods and services from a
designated nation, but does not require conclusion of an implementing
arrangement or cross-servicing agreement. This authority doesn't allow the US
to transfer goods and services to another nation. Cross-servicing authority allows
the US to acquire goods and services from or transfer goods and services to a
designated nation or international organization if an ACSA agreement has been
concluded. The G4, legal, civil affairs and the local US Embassy advise
commanders whether ACSA support is available, or will be made available to
allied /coalition nations.
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ASSISTANCE IN KIND
CONTRACTOR SUPPORT
Commanders and their staff must evaluate the most effective use of contractors,
realizing that contractor support is not always the proper means to support the
mission. Commanders evaluate mission criticality of the function, plus peacetime
and wartime contract costs, when deciding to use contractor support.
The nature and degree of risk in any given operational area varies from mission
to mission. Contingency contracting personnel carefully draft contracts and their
support clauses to ensure contractors are aware of their increased risk. Costs
habitually increase as the risk to contractor equipment and personnel increases.
To mitigate this risk, commanders assume the responsibility to protect contractor
personnel, as outlined in FM 100-XX.
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Contracting
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Other Services have programs similar to LOGCAP, the Air Force Contract
Augmentation Program (AFCAP) and the Navy's emergency Construction
Capabilities Program (CONCAP). This manual contains additional information
on these programs at Appendix A for LOGCAP, Appendix B for AFCAP, and
Appendix C for CONCAP.
Commanders must have available funding from the proper appropriations so that
supplies and services can be purchased, rented, or leased from commercial
sources. CCOs and RMOs advise commanders what appropriations they need to
execute their concept of support and contracting support plan.
• Funds must be expended for the reasons they were made available; such
as, funds for family housing can not be used to buy tanks (Purpose).
• Funds must be obligated during their period of availability for needs that
arise during that period (Time).
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available. For this reason, commanders and staff planners must ensure that
during the planning process, funding sources to support identified requirements
for contracting support are identified and earmarked.
FUNDING SOURCES
Funding for contingency operations comes from a variety of sources, both within
and beyond DOD appropriations. The comptroller and resource management
personnel understand the purpose and limitations of funds and ensure that
expenses are incurred properly and legally. Commanders require various
appropriations, including Operations and Maintenance, Army (OMA) for supplies
and services, Other Procurement, Army (OPA) for capital equipment purchases,
Open allotments for commercial feeding or ration supplements, ERC for DOD
construction missions nominated by the Department of State, and Humanitarian
Civic Assistance for DOD-assigned humanitarian civic assistance missions.
Figure 3-5, summarizes the major contingency operation funding sources.
CONTRACT FUNDING
DOD policy requires that all contracts be fully funded, which means that at the
time of contract award, funds are available to cover the total estimated cost of the
contract. Regardless of the funding source, the resource manager ensures
adequate funds are available to pay for the requested supplies or services. This
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is normally done through fund certification officers at the requiring activity level.
The funds certification officer works closely with the contracting officer to ensure
that funds are appropriate, valid, and sufficient.
An EEM from the TSC's Finance Command accompanies the first contracting
personnel into a theater. This EEM provides financial management and contract
payment support necessary to complete initial contracting actions required when
or before the lead forces arrive. This Finance Command EEM, tailored to fit
specific mission requirements, consists of at least five members. The Finance
Command EEM accompanies the contingency contracting EEM, habitually as
part of the TSC's EEM.
COST CAPTURING
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PURPOSE
The contracting support plan ensures that contracting personnel conduct advance
planning, preparation, and coordination to support deployed forces, and that
contracting plans and procedures are known and included in overall plans for an
operation. It ensures contracting plans and procedures are implemented,
reviewed, and carried out in response to: support of deployed US or allied forces;
rapid deployment support; and humanitarian support and disaster relief efforts.
It must be an integral part of both the deliberate and crisis action planning
process, and should be included in all OPLANS as an appendix to the logistics
annex.
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CONSIDERATIONS
The logistics annex to the OPLAN or OPORD coordinates organic CS and CSS
assets, HNS, contracting and LOGCAP, ensuring seamless support for deployed
forces. Contracting support plans integrate contracting into this logistics concept
of support, ensuring HNS, contingency contracting, and LOGCAP are properly
included and time-sequenced in all support planning. This helps guard against
inter- and intra-service competition for the same resources. As a rule, the plan
should consider the following:
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CONTENT
The specific content of a contracting support plan varies with each operation to
be supported. Certain basic elements in any plan should include--
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In order for contracting support elements to meet the support demands placed on
them in a contingency environment, they must have supplies and support
equipment to do their job. As part of their planning, contracting elements
prepare and maintain contracting support kits. These kits contain required
regulations, forms, general supplies, and equipment to support a contracting
office for a pre-determined time at a remote location. In addition to the necessary
supplies and equipment, CCOs develop and maintain a database for potential
deployment locations. Upon deployment, the contracting support element carries
a combination of the basic kit and the specific database for the deployment area.
Appendix F of the Army Federal Acquisition Regulation Supplement Manual #2,
contains a detailed listing of recommended forms and equipment to be included
in the contracting support kit.
A key ingredient of the contracting support kit, and one that is often overlooked,
is currency. Contracting Officers usually require local currency to pay host
nation vendors; use of US currency may require a status of forces agreement with
the host nation. Although maintaining actual on-hand quantities of foreign
currency is not usually appropriate, procedures to quickly obtain it should be
included in the contracting support plan and on the support kit checklist.
Finance personnel or paying agents with US and local currencies must deploy
with CCOs.
TRAINING CONSIDERATIONS
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Commanders and their staff play key roles in planning contracting support on
the battlefield by determining their operational requirements. During mission
planning, the staff estimates requirements to support the concept of operations.
Once support requirements are identified, the staff determines whether organic
CSS assets can meet those requirements. HNS, contingency contracting and
LOGCAP provide the commander tools to augment his organic CSS capabilities
and offset potential support shortfalls. The PARC, as the commander's
acquisition expert, advises him on planning and integrating these tools into the
logistics concept of support.
The appropriate MMC identifies, based on its asset visibility, which requirements
the supply system can fulfill, and which need to be filled from other means, such
as LOGCAP, HNS, contingency contracting, or by the commander establishing
control measures such as priorities of support or controlled supply rates. In an
operational theater, the ARB matches capabilities to requirements. In
performing this function, the general order of priority for application of logistics
capabilities is--
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• Contracting bridges gaps that may occur before organic support can be
mobilized, and in some cases will be necessary for the duration of the
contingency.
• Contracting from the local economy frees airlift and sealift assets for
other priority needs.
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(e.g. - OMA for expendable supplies and services, OPA for capital equipment
purchases or leases, DA Open Allotment for ration supplements) the mission
requires. Contracting personnel often deploy with bulk funding, funding pre-
certified by resource managers in specific amounts for each appropriation.
SUPPORT TO CONTRACTORS
LEGAL/JURISDICTIONAL AUTHORITY
Contractual documents provide the legal basis for the relationship between the
Army and a contractor. They specify the terms and conditions under which the
contractor is expected to perform, and identify the support relationship between
the contractor and the Army. When arranging contractor support, it is necessary
to specify in the contracts themselves what the support relationship will be. This
informs the contractor what the Army will provide, if anything, and what the
contractor is expected to handle. Commanders cannot direct contractors to
provide any goods or services; only contracting officers and CORs have the legal
authority to direct contractors to perform work within the scope of their contract.
Only Contracting Officers have the authority to change the contractor's scope of
work by modifying the contract.
Commanders bear responsibility for activities that take place within their AOs.
These responsibilities extend to contractors on the battlefield as well, and include
security to contractor personnel and operations, and supporting the physical and
spiritual quality of life for the contractor's workforce. When planning for the use
of contractor support, the matter of support to contractors must be considered,
and a determination made as to what support must be provided and who will
provide it. When the Army provides support, those additional requirements must
be planned for and resources identified. The contracting support plan is the
mechanism for accomplishing this.
SECURITY REQUIREMENTS
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Provisions of the law of war do not consider contractor personnel and DOD
civilians as combatants. Contractor and DOD civilian personnel should be issued
identification cards that correctly identify them as civilians accompanying an
armed force to facilitate their movement and dictate the type of treatment they
should be rendered if captured. Commanders must provide security to contractors
that support their operations, or eliminate the use of contractor support as an
option in areas where security becomes an issue. AR 715-XX and FM 100-XX,
both entitled Contractors on the Battlefield, address this in greater detail.
BILLETING
DEPLOYMENT
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During the planning process, commanders must ensure they include contracting
elements, including RMO, finance, legal, PBO, as well as USACE CREST and
other specialized contracting personnel, in the TPFDD process. Deployment of
contracting elements requires the coordination of all levels of command to ensure
that they are properly sequenced in the arrival flow. The operational situation
influences when contracting personnel deploy. In contingency scenarios,
commanders must consider two factors when planning the deployment of
contingency contracting personnel. First, normal business functions conducive to
contracting may not exist in the mission area itself during opposed entry
situations, at least until some semblance of public order is reestablished. Second,
contracting personnel deploying in the EEM procure available goods and services
from the local economy, easing the burden on available strategic lift. Between
these extremes, commanders plan the deployment and build up of contracting
elements as required by the mission. As a general rule, however, commanders
should deploy contracting personnel as early as possible into the mission area.
The PARC advises them on where and when to deploy contracting assets.
While ensuring that contracting elements are identified and included in the
deployment sequence is important, identifying and preparing those elements and
their personnel is equally as important. Contracting element planning actions
must ensure that organizations and individuals are prepared for deployment and
that their sequence in the deployment is established. Not only military
personnel, but also assigned government civilian personnel must be prepared to
deploy. DA Pamphlet 690-47, DA Civilian Employee Deployment Guide, provides
the guidance for the deployment of civilians.
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CONTRACTORS
RELIGIOUS SUPPORT
FINANCE
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Chapter 4
"I don't know what the hell this 'logistics' is that Marshall is always
talking about, but I want some of it."
Timely and proper planning of support requirements by the unit determines the
adequacy of the support provided. Because the nature of contingency operations
vary, units must study and evaluate higher headquarters plans and staff
estimates, and identify their support requirements during the military decision
making process, for a particular contingency operation. At this point, planners
concern themselves with what they need, not who will provide it. Once
identified, these requirements are included in support plans, and the
appropriate sources to satisfy requirements are determined.
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requirement. The review process selects the source that best meets the
requirement. When other sources are not available or cannot meet the
requirement within the timeframe required, and funding is available,
contracting support may be selected. Figure 4-1 describes the decision process
involved in determining if contracting support should be used. This decision
cycle need not be lengthy or bureaucratic. The appropriate MMC maintains
asset visibility through such automated means as Standard Army Retail Supply
System – Objective (SARSS-O), or the emerging Global Combat Support System
- Army (GCSS-A), allowing it to quickly identify whether a requirement needs to
be resourced from sources other than the military supply system. CCOs
anticipate mission requirements, identify potential vendor sources, and advise
commanders and logisticians of commercially available support to augment the
supply system.
• G1 approves requests for civilian labor (US and non-US) and morale
support activities.
• G3 approves requests for the lease of real estate by the USACE. Public
law reserves authority to purchase or lease real estate and real property
to the USACE.
• G4 approves requests for the purchase of all supplies and services not
the responsibility of another staff proponent. The appropriate MMC
maintains supply visibility throughout the force and the wholesale
supply system, and advises the G4 when shortfalls exist that require
resourcing by other means, such as HNS, LOGCAP or contingency
contracting.
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• The staff engineer coordinates the purchase or lease of facilities for Army
forces in theater.
As with supply requests, a request for services is satisfied at the first level
having the capability. If it cannot be satisfied at one level it is passed on to the
next, and continues on until it can be satisfied. When a request cannot be
satisfied through organic support, contingency contracting, HNS, or LOGCAP
may be able to do so. Figure 4-2 describes the typical flow of a request for
services.
For the purposes of this manual, requests for support generally are processed as
described below, although some processing steps and requirements may be
adapted to the operational environment.
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The unit or requiring activity is the initiation point for any request. Either
through operational planning when initial requirements are identified, or during
an operation when a new requirement arises, the unit must initiate the action.
Commodity managers in the MMC often identify mission requirements that
can't be met by the organic CSS structure or the military supply system. Under
the concept of anticipatory logistics, these commodity managers often prepare
purchase requests to initiate local procurements to meet those requirements
exceeding the capability of the military support infrastructure. Experienced
contingency contracting personnel advise commanders, during the planning
process, of goods and services they habitually provide deploying forces, such as
bottled water, Class IV supplies, or trash and field sanitation services, and
inform those commanders what they require from other staff sections for that
support to be effective. For example, the staff engineer plans field sanitation
and trash disposal, and the Provost Marshal plans base access for contractor
personnel.
DIVISION
Once a request is initiated, it flows either through the unit’s support battalion
(supply request) or brigade level staff (service request), to the division materiel
management center (DMMC) or the functional staff proponent for action. The
key action at division level is to determine if the request can be supported with
division assets. If the request cannot be supported at division level, it is
forwarded to corps level for further processing. If the division is the highest
level ground force, the DMMC or functional staff proponent determines if local
purchase is needed to fulfill the requirement.
CORPS
Processing a support request at the corps level is similar to that at division. The
corps is responsible for processing requests from all divisions and non-divisional
units within the corps area. Once the corps materiel management center
(CMMC) or the responsible staff proponent takes action, the request is
forwarded to the appropriate corps support unit for action. If corps assets
cannot honor the request, it is passed to the next higher echelon for further
processing. When a corps acts as an ARFOR, the CMMC determines whether
contingency contracting should fill a requirement for support.
EAC/COMMZ
At EAC/COMMZ, the TSC processes requests for all units in or passing through
the COMMZ, and those forwarded from the corps. After processing by the TSC
MMC or the appropriate staff proponent, the request is either sent to the
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The CINC or senior commander at the highest level in the theater establishes an
acquisition review board to review and approve support requests that are being
considered for contracting. The ARB reviews contracting requests that exceed
the dollar amount directed in the contracting appendix of the OPLAN or OPORD
that fall within specified categories. The theater contracting support plan
provides specific criteria for which requests must be submitted to the board. The
board’s purpose is to determine which requests should be approved and the
priority in which they should be acted upon. Once approved, requests are
forwarded to the supporting contracting element for action.
EXCEPTIONS
The contracting support plan for the particular contingency operation will
specify the contracting support structure and support relationships for the
theater. It will also establish priorities for support as directed by the J3/G3/S3,
and at what level controlled supplies or services will be managed. Although the
objective for obtaining support is to exhaust all normal supply system and
organic support sources in the theater before considering contracting support,
the operational environment may dictate that a complete search of the theater is
not possible. Exceptions to processing flow described above can be established
when expediency and responsiveness are essential. When the contracting
support plan provides, certain support requests may be considered for
contracting support without running the entire length of the theater system. In
these cases, the responsible MMC or functional staff proponent forwards
requests to the supporting contracting element.
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SUPPLY REQUIREMENTS
• Administrative items.
• Subsistence like water, potable ice, fresh fruits and vegetables, and
bread. Subsistence items must have prior approval by the appropriate
G4 and veterinarian staff before being purchased.
• Certification that sufficient funds are available and the approval to use
them.
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OBTAINING FUNDING
Although contracting elements arrange for and acquire the supplies and services
requested, the requiring activity identifies and describes, as specifically as
possible, what is needed and when; and obtains the approvals and funding
before the contracting element can perform its function.
The requiring activity, whether it is a TSC MMC, a corps G4, or the requesting
unit, bears the initial burden of responsibility in obtaining needed supplies and
services through contracting support. It is responsible for--
The governing contracting support plan specifies who is responsible for receiving
supplies and services obtained through contracting support. When supplies are
contracted for, either a designated central receiving point or the requesting
unit/activity verifies that it receives what was requested. For services, the
designated COR normally verifies that the service performed complies with the
statement of work. Upon delivery of the supplies, or completion of the services
or construction being performed, the verifying activity performs the following:
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• Signs and completes the receiving report so that the contractor can get
paid.
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Appendix A
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Each base camp provides billeting, dining facilities, food preparation, potable
water, sanitation, showers, laundry, transportation, utilities and other logistical
support. The contractor is required to maintain the capability of supporting two
contingencies concurrently in widely separated geographical areas.
• Supply Operations (all classes of supply except Class X). NOTE: The
Umbrella LOGCAP contract is a cost-plus award fee contract, meaning
the Government reimburses the contractor for allowable expenses, plus
an award fee based on performance. Commanders must consider this
award fee, not just up-front costs, before using LOGCAP to provide
supplies.
• Field Services
∃ Laundry
∃ Clothing Repair
∃ Food Service
∃ Mortuary Affairs
∃ Billeting
∃ Facilities Management
∃ MWR
∃ Information Management
∃ Personnel Support
∃ Maintenance
∃ Transportation
∃ Medical Services
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Appendix B
The AFCAP represents an initiative to contract for base operating support and
temporary construction capabilities to relieve or augment military support forces
and resources involved in stability or support operations. The contract expects
extensive worldwide support capabilities with minimal response time.
The scope of the AFCAP contract requires that the contractors provide the
personnel, equipment, materials, services, travel and all other means necessary
to provide a quick response, worldwide planning, and deployment capability. The
capabilities under this contract are intended to support Air Force stability and
support operations during NCA missions, which would include (but not limited
to) joint or combined US military forces acting as part of or in concert with UN,
NATO, multinational force, or other entities. These missions may include Air
Force required support to natural disaster relief operations within and outside
CONUS.
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Appendix C
The CONCAP contract provides the Navy the capability to supplement its
permanent organization for rapid response to contingency operations. The
CONCAP contract, administered by the Naval Facilities Engineering Command
(NAVFAC), is similar to the Army’s LOGCAP and the Air Force’s AFCAP, but is
more narrowly focused on construction and construction-related services.
• Dredging.
• Airfield construction.
• Pier construction.
In support of CONCAP, two contracts are awarded. The Atlantic contract covers
the US east of the Mississippi River, Canada, South and Central America, the
Atlantic Ocean, Europe, Africa, and Southwest Asia. The Pacific contract covers
the US west of the Mississippi River, Alaska, Hawaii, the Pacific Ocean, the
Indian Ocean, Asia, and Southeast Asia.
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Appendix D
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UNCLASSIFIED
REFERENCES
g. Field Manual No. 100-7, Decisive Force: The Army In Theater Operations, May
1995
h. Joint Operation Planning and Execution System (JOPES), Vol II, Joint Pub 4-
01, Mobility System, Policies, Procedures
i. Joint Operation Planning and Execution System (JOPES), Vol II, Joint Pub 5-
03.2, Planning and Execution Formats and Guidance
1. General
b. Scope. This appendix covers the planning for contracting under a single service
support organization for purchasing, renting, leasing, or otherwise obtaining supplies, services
and construction from non-federal sources for use by all US forces in the theater of operations.
UNCLASSIFIED
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UNCLASSIFIED
c. Control
(2) The PARC will immediately deploy contracting Forward Area Support
Teams (FASTs) consisting of contracting officers and ordering officers to the contingency site to
perform initial purchasing. The PARC will coordinate with the CJTF SJA for legal support to
accompany these teams and to support all contracting operations in theater.
(3) Resource management personnel from 3rd Army Finance are responsible
for monitoring and administrating all contract funding under this OPLAN.
(4) The PARC will have direct access to the 3rd Army Commander in his
capacity as the HCA, in order to fulfill the PARC’s and HCA’s statutory and regulatory
responsibilities.
(1) The main 3rd Army contingency contracting organization will consist of
the: Office of the PARC; Support Section; Contracting Office, which consists of the Simplified
Acquisition Section and Contracts Division; and Contract Management Section.
(2) The PARC is located at the contracting activity level with direct access to
the HCA. The Office of the PARC will provide oversight to ensure that all purchases subject to
the FAR, DFARS, and AFARS are properly executed by contracting officers selected and
appointed pursuant to AFARS 1.603.
UNCLASSIFIED
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UNCLASSIFIED
(4) The Support Section will provide support and services required to ensure
efficient contract execution and administration. It will:
(f) Perform cost and price analysis and on-site review of contracting
documents. Identify areas for prevention of fraud, waste, abuse, for referral to proper
authorities, and provide support for property administration.
UNCLASSIFIED
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UNCLASSIFIED
(5) The Simplified Acquisition Section will plan, solicit, execute and
administer supplies, services, and construction procurements using simplified purchase
procedures. It will:
(g) Under the provisions of AFARS Part 13, supervise the use of
credit cards for micro and simplied acquisition within the theater.
(6) The Contracts Division will plan, solicit, and execute procurement of
supplies, services, and construction material utilizing other than simplified purchase
procedures. It will:
(7) The Contract Management Section will administer and manage all
contracts, other than simplified acquisitions, to include service contracts. It will:
UNCLASSIFIED
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UNCLASSIFIED
(1) The WHNS program is a series of agreements with the host nation
addressing the following: transportation, civilian labor, services, rear area protection,
contracting, petroleum, oils, lubricants, acquisition of equipment, telecommunications, supplies,
health service support, facilities, and language support.
2. Assumptions
UNCLASSIFIED
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UNCLASSIFIED
and anticipated businesses closing. This will limit contracting operations and will create an
environment of scarce resources.
f. Existing DOD contracting officers and contracts in the area of operations will be
utilized wherever possible.
a. The Commander of 3rd Army, as the HCA, provides joint service contingency
contract planning and guidance for 3rd Army.
UNCLASSIFIED
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UNCLASSIFIED
4. Responsibilities
(2) Provide overall guidance throughout the contingency and act as the
approving authority as stipulated by the FAR, DFAR, and AFARS.
(3) Develop and maintain MOA’s with other services to provide contingency
contracting support.
(4) At the start of a contingency, submit all requests for contracting waivers,
deviations, and special authorizations.
(1) Head an organizational element reporting directly to the HCA for policy
statutory and regulatory matters.
(3) Direct all contracting activities assigned or attached to the 3rd Army
contingency area and will accomplish missions assigned by the HCA or 110th TSC Commander.
UNCLASSIFIED
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UNCLASSIFIED
Contracting Officer and $200,000 limit for all other Contracting Officers after contingency is
declared. Additionally, lead Contracting Officers at the Corps Level will serve as Chief of
Regional Contracting Offices and will have the authority to approve actions at a level above the
contracting office and Chief of the Contracting Office for the customers they support; Division
Level - $200,000 limit for lead Contracting Officer and $50,000 limit for all other Contracting
Officers; and Brigade Level and Lower - $2,500 limit.
(14) Ensure automation for contracting is on-site for the main organization,
as well as, forward offices to facilitate requisition document controls, priority processing,
reporting procedures, standard use of specifications for common and repetitive requirements,
and as a means of expediting accurate application of clauses and provisions.
(15) Provide input to the 110th TSC for accountability policy of contracted
property (leased and purchased).
(16) The PARC will be dual slotted as the PARC and the Theater Contracting
Commander.
(17) Per delegation from the HCA, the PARC will nominate an individual
from the support section to be the Competition Advocate.
c. The Chief of the Contracting Office will plan, direct, and supervise the
purchasing and contracting for supplies, services, and construction for assigned customers.
UNCLASSIFIED
D-9
FM 100-10-2
UNCLASSIFIED
(b) Prepare a plan for receiving and providing logistical support for
augmentees.
(1) Provide finance and accounting support to the 110th TSC Contracting
Directorate.
(2) Provide primary construction over $300,000 and real property contract
and lease support.
(4) Provide a Liaison Officer to the 3rd Army Office of the PARC.
g. Organic contracting personnel from Deployed Units, except GSA, DLA, USACE,
USAMC’s LSE, and MTMC, will:
UNCLASSIFIED
D-10
FM 100-10-2
UNCLASSIFIED
(1) Be detached from their parent units and attached to the 110th TSC
Contracting Directorate.
(2) Coordinate with the nearest operating location within 30 days to ensure
support, obtain in-theater warranted contracting authority, and verify operating location.
h. DLA will:
(4) Provide supply support and technical and logistics services to all military
service.
(5) Provide a Liaison Officer to the 3rd Army Office of the PARC.
UNCLASSIFIED
D-11
FM 100-10-2
UNCLASSIFIED
(2) Integrate the acquisition flow with the overall theater logistics operation.
(4) The 3rd Army PARC will be an ARFOR representative along with other
ARFOR representatives designated by the 3rd Army commander and accepted by the CJTF.
UNCLASSIFIED
D-12
FM 100-10-2
Appendix E
E-1
FM 100-10-2
Appendix F
In December of 1997, the Army published its first policy on the use of contractors
on the battlefield. Although the policy as written, applies only to US contractors,
its content serves as a guide for commanders who must consider their
responsibilities to any contractor who may be providing support in a contingency
environment. This appendix provides this policy in its original published form.
Additionally, AR 715-XX, Army Contractors on the Battlefield, addresses this
policy.
F-1
DEPARTMENT OF THE
ARMY
WASHINGTON, D.C. 20310
The purpose of this memorandum is to provide a consistent and uniform policy on the use of
U.S. contractors to augment the support of U.S. Army operations and/or weapon systems. This
policy applies to all U.S. Army elements and Department of the Army contractors. Likewise, it is
applicable wherever U.S. Army elements are stationed or deployed during peacetime, war, or
Military Operations Other Than War (MOOTW).
Lessons learned from recent military operations, including Operations Joint Endeavor and
Desert Storm, indicate contracting and outsourcing may be effective Combat Service Support force
multipliers. They can increase existing capabilities, provide new sources of supplies and services,
and bridge gaps in the deployed force structure. In the event of emergency or contingency
operations, contractor personnel may be required to perform services in a theater of operations.
With this increased emphasis on the use of contractors comes the need to identify the doctrine,
policies and procedures affecting the use of civilian contractors.
Contractors are required to perform all tasks identified within the Statement of Work (SOW)
and all other provisions defined within the contract. Contractors will comply with all applicable U.S.
and/or international laws. During a declared war, civilian contractors accompanying the U.S. Army
may be subject to the Uniform Code of Military Justice (UCMJ).
When U.S. contractors are deployed from their home stations, in support of Army
operations/weapon systems, the Army will provide or make available, on a reimbursable basis, force
protection and support services commensurate with those provided to DOD civilian personnel to the
extent authorized by law. These services may include but are not limited to non-routine
medical/dental care; mess; quarters; special clothing, equipment, weapons or training mandated by
the applicable commander; mail, and emergency notification. Planning must be accomplished to
ensure agreed upon support to contractors is available to the responsible commander.
The following must be considered during the negotiating and drafting of any contract that
requires the employment/deployment of civilian contractors to support U.S. Army operations/weapon
systems:
• Areas of deployment (to include potential hostile areas) and their associated risks.
• Contractor personnel reporting and accountability systems to include plans to address contractor
personnel shortages due to injury, death, illness, or legal action.
• Specific training or qualification(s) that will be required by civilian contractors to perform within
a theater of operations, e.g. vehicle licensing, NBC, weapons.
• A plan to transition from peacetime operations to operations during conflict, war, and/or
MOOTW, and a subsequent plan to transition back to peacetime.
• A plan to transition mission accomplishment back to the government if the situation requires the
removal of contractors.
• When Status of Forces Agreements (SOFAs) do exist, they may not specifically address the
status of contractor personnel. Contractor personnel status will depend on the nature of the
specific contingency operations and those applicable SOFA provisions.
Contractor employees accompanying U.S. Armed Forces may be subject to hostile action. If,
captured, a contractor’s status will depend upon the type of conflict, applicability of any relevant
international agreements, and the nature of the hostile force. The full protections granted to
Prisoners of War (POWs) under the Geneva (1949) and Hague (1907) Conventions apply only during
international armed conflicts between signatories to those conventions. Accordingly, these
conventions are generally non-applicable during MOOTW. Therefore, contractor employee
protection during MOOTW will depend on the specific circumstances of an operation. When the
United States is a participant in an international armed conflict, contractors are entitled to be
protected as POWs if captured by a force that is a Geneva/Hague Convention signatory. To ensure
proper treatment, contractors will be provided with a Geneva Conventions (DD Form 489) or similar
Identification Card.
U.S. contractor employees deployed to a theater of operations to perform public work under a
contract (or subcontract) with the United States may qualify, if injured or killed while deployed, for
Workers’ Compensation under the Defense Base Act depending on the specific circumstances of
incapacitation and the precise nature of the work being performed.
Glossary
Glossary-1
FM 100-10-2
Glossary-2
FM 100-10-2
Glossary-3
FM 100-10-2
Bibliography
AR 710-2, Inventory Management Supply Policy Below the Wholesale Level, Mar 94
Army Federal Acquisition Regulation Supplement Manual No. 2, Contingency Contracting, Dec
93
DA PAM 710-2-2, Supply Support Activity Supply System: Manual Procedures, Feb 94
DOD Directive 1400-31, Mobilization Management of the DOD Civilian Workforce, Apr 95
DOD Directive 1404-10, Retention of Emergency Essential DOD US Citizen Employees Overseas,
Apr 92
DOD Directive 5000.52, Defense Acquisition Education, Training, and Career Development
Program, Oct 91
DOD Instruction 1400-32, Mobilization Preparedness Planning for the DOD US Civilian
Workforces, Apr 95
Bibliography-1
FM 100-10-2
FM 100-17-3, Reception, Staging, On-Ward Movement, & Integration (RSOI), (Draft), Sep 97
Bibliography-2
FM 100-10-2
Joint Publication 1-02, DOD Dictionary of Military and Associated Terms, Mar 94
Joint Publication 3-07, Joint Doctrine for Military Operations Other than War, Jan 95
Joint Publication 3-07.6, JTTP for Foreign Humanitarian Assistance, (Draft), Jun 97
Joint Publication 3-07.7, JTTP for Domestic Support Operations, (Draft), Aug 97
Joint Publication 4-0, Doctrine Support for Logistics Support for Joint Operations, Jan 95
Joint Publication 4-01.8, JTTP for Joint Reception, Staging, On-ward Movement, and
Integration, (Draft), Apr 97
Bibliography-3
FM 100-10-2
Index
Acquisition, 1-2, 1-4 through 1-6, 1-11, 1-16, 1-18 through 1-21, 2-2, 2-3, 2-7, 2-11, 2-12, 3-7, 3-9,
3-17, A-1, D-5 through D-8, D-12, F-4
Acquisition review board, 1-5, 1-18 through 1-20, 2-7, 2-11, 2-13, 3-17, 3-18, 4-6
Area
of operation, 1-8, 1-12, 1-15, 1-21, 2-1, 2-7 through 2-9, 2-15, 2-16, 2-20, 3-19, D-3, D-7
D-11, F-2
Army
service component commander, 1-4, 1-9 through 1-11, 2-1 through 2-3, 2-5 through 2-7,
2-11 through 2-13, 3-5, 3-11, 4-5
Assistant Secretary of the Army for Acquisition, Logistics and Technology, 1-6, 2-3, 2-12
Index-1
FM 100-10-2
service support, 1-2, 1-9 through 1-15, 2-1, 2-2, 2-5, 2-9, 3-5, 3-6, 3-8, 3-9, 3-14, 3-17, 3-18,
4-5, A-1, F-2
Zone, 1-9
Command and control, 1-6, 1-7, 1-10, 1-20, 2-5, 2-10, 2-15, 3-15, F-2
Commander-in-Chief, 1-4, 1-6 through 1-9, 1-16, 1-20, 2-1, 2-5, 2-12, 2-13, 2-16, 2-19, 2-20, 3-4,
3-5, 3-7, 4-6
Continental United States, 1-2, 1-5, 1-9, 2-7, 3-8, 3-11, 3-12, 3-22, B-1, D-7, D-11, F-3
Contingency
Contingency contracting officer, 1-16, 2-14, 2-17, 2-19, 3-1, 3-7, 3-10, 3-16, 4-2
Contingency contracting, 1-1, 1-2, 1-4, 1-10, 1-11, 1-13 through 1-15, 1-18, 1-19, 1-21,
2-1, 2-3, 2-5, 2-6, 2-8, 2-9, 2-11, 2-13, 2-14, 2-16, 2-19, 3-1, 3-6, 3-8, 3-9, 3-12,
3-14, 3-16 through 3-18, 3-20 through 3-22, 4-1, 4-2, 4-4, 4-5, 4-8, 4-9, A-1, D-2
through D-4, D-6 through D-11
Contracting
Elements, 1-17, 1-19, 2-4, 2-7 through 2-11, 2-14, 2-19, 3-14 through 3-16, 3-20, 3-21, 4-8
Index-2
FM 100-10-2
Officer, 1-3, 1-4, 1-10, 1-13, 1-16, 1-17, 1-19, 1-21, 2-3, 2-4, 2-6, 2-7, 2-10, 2-12, 2-14, 2-15,
2-17, 2-18, 3-5, 3-6, 3-9, 3-10, 3-12, 3-14 through 3-16, 3-18 through 3-20, D-2
through D-4, D-6 through D-9, F-2
support, 1-1, 1-2, 1-5 through 1-7, 1-9 through 1-11, 1-13 through 1-17, 1-19, 1-21, 2-1,
2-4 through 2-13, 2-16, 2-19 through 2-21, 3-1, 3-3, 3-9 through 3-11, 3-13
through 3-17, 3-20, 3-21, 4-6, 4-9, D-6, D-8 through D-10, E-1
support plan, 1-5, 1-10, 1-11, 1-13, 1-14, 1-17, 2-3, 2-5 through 2-11, 2-13, 2-20, 3-3, 3-4,
3-9, 3-10, 3-13 through 3-17, 3-19, 3-21, 4-6, 4-9, D-1, D-2, D-10
Contractors, 1-12, 1-17, 2-5, 2-7, 2-8, 2-14 through 2-17, 3-6, 3-8, 3-9, 3-15, 3-19, 3-20, 3-22, B-1,
D-6, F-1 through F-3
Corps, 1-9 through 1-11, 2-7 through 2-9, 2-11, 3-17, 4-5, 4-9
Contract Management Command, 2-7, 2-10, 2-11, 3-10, 3-14, 3-15, A-3
Index-3
FM 100-10-2
Department
of Defense, 1-1, 1-5, 1-11 through 1-13, 1-21, 2-13, 2-14, 2-19, 2-21, 3-6, 3-11, 3-20, D-2,
D-7, D-10, F-3
Deployment, 2-3, 3-3, 3-4, 3-13 through 3-16, 3-20 through 3-22, B-1, D-2, D-4, F-3
Early entry module, 1-10, 1-14, 2-3 through 2-5, 3-9, 3-12, 3-21
Finance, 1-6, 1-13, 1-14, 1-16, 1-21, 2-1, 2-3 through 2-5, 2-11, 2-14, 2-17 through 2-19, 3-12, 3-14,
3-16, 3-21, 3-22
agent, 2-17
Force
Index-4
FM 100-10-2
Head of Contracting Activity, 1-3, 1-4, 1-6, 2-3, 2-5, 2-6, 2-11 through 2-13, 3-17, D-3, D-7
through D-10
Host Nation, 1-1, 1-3, 1-12, 1-16, 2-2, 2-6, 2-13, 3-6, 3-7, 3-9, 3-16, 3-17, 3-22, D-4, D-6, D-7, D-12,
E-1
Host Nation Support, 1-3, 1-4, 1-10, 1-14, 1-16, 1-18, 1-19, 1-21, 2-6, 2-9, 2-12, 2-13, 3-6 through
3-9, 3-14, 3-15, 3-17, 3-18, 4-1, 4-2, 4-4, D-2, D-6
Interagency, 1-5
Logistics, 1-2, 1-9 through 1-13, 1-16 through 1-21, 2-3 through 2-5, 2-13, 2-19, 2-20, 3-4 through
3-6, 3-8, 3-9, 3-13, 3-14, 3-17, 3-18, 4-5
Civil Augmentation Program, 1-4, 1-10, 1-14, 1-16, 1-18, 1-19, 1-21, 2-6 through 2-9, 2-13,
2-15, 2-16, 3-9, 3-10, 3-14, 3-15, 3-17, 3-18, 4-1, 4-2, A-1 through A-3, C-1, D-2,
D-6, E-1
Index-5
FM 100-10-2
Micropurchases, 1-4
Mission, Enemy, Terrain, Troops, Time available, and Civilian Considerations, 1-17
Multinational, 1-5. 1-20, 2-10, 2-19 through 2-21, 3-6, 3-7, 3-22, 4-6
Operation order, 1-10, 1-13, 1-16, 1-17, 1-19, 2-5, 2-8, 2-10, 2-11, 2-13, 2-15, 2-16, 2-20, 3-4, 3-14,
3-17, 4-1, 4-6
Index-6
FM 100-10-2
Operation plan, 1-9, 1-10, 1-13, 1-16, 1-17, 1-19, 2-5, 2-8, 2-10, 2-11, 2-13, 2-15, 2-16, 2-20, 3-2,
3-3, 3-5, 3-13, 3-14, 3-17, 4-1, 4-6
Ordering officer, 1-4, 1-13, 1-20, 2-12, 2-18, 2-19, 3-12, 3-14 through 3-16, D-3, D-4, D-7 through
D-9, D-11
Principal Assistant Responsible for Contracting, 1-3 through 1-5, 1-9 through 1-11, 1-13, 1-19
through 1-21, 2-3, 2-5 through 2-16, 2-19, 2-20, 3-7, 3-9, 3-17, 3-20, 3-21, D-3, D-7
through D-12
Property Book Officer, 1-4, 1-13, 1-14, 2-4, 2-18, 2-19, 2-21, 4-7, 4-9
Index-7
FM 100-10-2
Resource
management, 1-13, 1-21, 2-3, 2-4, 2-11, 2-13, 3-9, 3-11, 3-12, 3-14, 3-18, 3-21, 4-8, D-3
Theater
contracting, 1-5, 1-6, 1-9, 1-10, 1-16, 2-1 through 2-3, 2-5, 2-6, 2-10 through 2-13, 2-20,
D-3, D-9
contracting plan, 1-11, 2-5, 2-8, 2-9, 2-11, 2-15, 2-16, 4-6
Support Command, 1-10, 2-3, 2-5 through 2-8, 3-6, 3-12, 4-5, 4-9, D-3, D-6 through D-11
US Army Corps of Engineer, 1-4, 2-6, 2-7, 2-10, 2-11, 2-13, 2-20, 3-6, 3-10, 3-15, 3-21, 4-2, 4-9
Index-8
FM 100-10-2
US Army Materiel Command, 1-4, 2-5, 2-7, 2-8, 2-13, 2-15, 2-16, 3-10, D-11
Vendor, 1-13 through 1-16, 2-4, 2-6, 2-7, 2-11, 2-15, 2-18, 3-1, 3-7, 3-9, 3-12, 3-14 through 3-17,
3-20, 3-22, 4-2, D-8
Index-9
FM 100-10-2
4 AUGUST 1999
ERIC K. SHINSEKI
General, United States Army
Chief of Staff
Official:
JOEL B. HUDSON
Administrative Assistant to the
Secretary of the Army
9913311
DISTRIBUTION: